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Assessment of the
Coral Sea Fishery
January 2021© Copyright Commonwealth of Australia, 2021. Assessment of the Commonwealth Coral Sea Fishery 2021 is licensed by the Commonwealth of Australia for use under a Creative Commons By Attribution 3.0 Australia licence with the exception of the Coat of Arms of the Commonwealth of Australia, the logo of the agency responsible for publishing the report, content supplied by third parties, and any images depicting people. For licence conditions see: http://creativecommons.org/licenses/by/3.0/au/. This report should be attributed as ‘Assessment of the Commonwealth Coral Sea Fishery 2021, Commonwealth of Australia 2021’. Disclaimer This document is an assessment carried out by the Department of Agriculture, Water and the Environment of a commercial fishery against the Australian Government Guidelines for the Ecologically Sustainable Management of Fisheries – 2nd Edition. It forms part of the advice provided to the Minister for the Environment on the fishery in relation to decisions under Parts 13 and 13A of the Environment Protection and Biodiversity Conservation Act 1999. The views expressed do not necessarily reflect those of the Minister for the Environment or the Australian Government. While reasonable efforts have been made to ensure that the contents of this report are factually correct, the Australian Government does not accept responsibility for the accuracy or completeness of the contents, and shall not be liable for any loss or damage that may be occasioned directly or indirectly through the use of, or reliance on, the contents of this report. You should not rely solely on the information presented in the report when making a commercial or other decision.
CONTENTS
Assessment summary ......................................................................................................... 1
Section 1: Assessment Summary ........................................................................................ 5
Section 2: Summary of Issues Requiring Conditions ........................................................... 7
Assessment history: ................................................................................................... 14
Section 3: Detailed Analysis Against the Guidelines .......................................................... 15
Section 4: Assessment Against the EPBC Act ................................................................... 28
Part 10 – Strategic assessments ................................................................................ 28
Part 12 – Identifying and monitoring biodiversity and making bioregional plans .......... 29
Part 13 – Species and communities ........................................................................... 29
Part 13A – International movement of wildlife specimens ........................................... 31
Part 16 – Precautionary principle and other considerations in making decisions ........ 38
References ........................................................................................................................ 39ASSESSMENT SUMMARY
The Commonwealth Coral Sea Fishery is a commercial fishery that harvests a wide range of
species in the Coral Sea, including species listed under Appendix II of the Convention on
International Trade in Endangered Species of Wild Fauna and Flora (CITES) the Humphead
Maori Wrasse (Cheilinus undulates) and corals in the Family Acroporidae, Black Teatfish
(Holothuria whitmaei) and White Teatfish (H. fuscogilva).
As a party to the Convention, Australia must apply all CITES provisions of the EPBC Act to
CITES imports and exports. Specimens being exported from Australia for commercial
purposes must come from an approved commercial source, such as a Wildlife Trade
Operation approved under the EPBC Act.
On 4 November 2020, the Australian Fisheries Management Authority (AFMA) submitted an
application for assessment of the Coral Sea Fishery (the fishery) under wildlife trade and
protected species provisions of the Environment Protection and Biodiversity Conservation Act
1999 (EPBC Act). The Department of Agriculture, Water and the Environment assessed the
application against the Australian Government ‘Guidelines for the Ecologically Sustainable
Management of Fisheries – 2nd Edition’ (the Guidelines) and in doing so, also considered all
public comments received on the application. Public consultation on the application was
undertaken from 5 November until 4 December 2020. Four public submissions were received
and AFMA provided advice in response to the issues raised in the public submissions.
The key concerns raised in the public comments included:
Sea Cucumbers:
• Global declines of teatfish species and associated IUCN listings which informed the
CITES listing of the species.
• Biology and life-history traits of these species not being able to sustain commercial
harvest.
• The lack of information collected on numbers of individual animals harvested.
• Inclusion of the Aquarium Sector for the AFMA observer program
• Introduce a no take for the harvest of prickly redfish (Thelenota ananas).
• The important role Sea Cucumbers play in ecosystem health and the impacts that
overfishing would have on reef health.
• Whether rising average sea temperatures and associated effects on spawning are
considered in managing the fishery.
• Potential for illegal, unreported and unregulated take.
Humphead Maori Wrasse
• Availability of data on current domestic catches, including non-commercial catches in
areas including the Coral Sea.
• Evidence to suggest declines in densities of the species, at least in parts of the fishery.
• Impacts associated with removal of large male specimens given the species biology.
• Lack of specific conservation action plans.
• Impacts on, and risks to spawning aggregations.
• The importance of Australian stocks for recovery of overfished stocks in the broader
region.
• The importance of science in determining likely detriment to CITES-listed species.• The likelihood that exports for exhibition purposes contribute to education about, and
conservation of the species
The Department assessed the application under the EPBC Act and the Guidelines. Both the
public submissions and AFMA’s response were considered in the Department’s assessment.
The Department’s assessment forms the basis for approvals granted under Parts 13 and 13A
of the EPBC Act, and also forms the basis for the Australian CITES Scientific Authority’s Non-
Detriment Finding for CITES species harvested in this fishery.
Description of the Fishery
The Coral Sea Fishery extends from Cape York to Sandy Cape, Queensland. It is bounded on
the east by the Australian Fishing Zone and on the west by a boundary line 10 to 100 nm east
of the western boundary of the Great Barrier Reef Marine Park. The fishery operates wholly
within the area of the Coral Sea Commonwealth Marine Reserve.
The fishery is a diverse fishery that harvests a wide range of species in the Coral Sea. The
fishery is divided into four sectors:
• Line Sector – demersal longline, trotlines, droplines, setlines and handlines
• Sea Cucumber Sector – hand collection
• Aquarium Sector – hand collection, barbless hook and line, scoop, cast and seine nets
• Lobster and Trochus Sector – hand collection
Fishery management arrangements
The fishery is managed by the Australian Fisheries Management Authority (AFMA) under the
Fisheries Management Act 1991 (CTH) and the Fisheries Management Regulations 2019
(CTH).
Target stocks
A wide range of finfish species are permitted to be taken in the fishery, as well as sharks,
lobsters, trochus and sea cucumbers. The main species currently or historically harvested in
each sector are outlined below.
Aquarium Sector
The majority of the harvest consists of damselfish, butterflyfish, angelfish, wrasse, anemone
fish, surgeonfish, blennies and gobies, with the species targeted varying over time in response
to changing market demands. Live rock (limestone encrusted with coralline algae and other
encrusting species) may also be harvested.
While there are no formal stock assessments for the sector, research by the Australian Bureau
of Agricultural and Resource Economics and Sciences (ABARES) indicates that given low
historical extraction rates, the sector is unlikely to be having an adverse impact on the stock
and not subject to overfishing.
The Aquarium Sector also takes Humphead Maori Wrasse and corals in the Family
Acroporidae which are species listed on CITES Appendix II (take of these species is not
permitted in the other sectors of the fishery).
Humphead Maori Wrasse
Advice from relevant experts (Prof. Howard Choat, 2020; IUCN Groupers and Wrasses
Specialist Group, 2020) has been obtained in the process of the current assessment. This
advice suggests that abundance of Humphead Maori Wrasse has seen a decline in the outer
GBR by around 40 per cent. Advice has also been received that commercial catches inNorthern Territory fisheries have taken place in recent years, though the exact amount of this catch and capacity to monitor and control these catches is still being investigated by the department, numbers seem very low with estimates from the relevant management agency in NT being at 7 Humphead Maori Wrasse harvested over the last 25 years. The harvest in NT has been considered in the making of a non-detriment finding for this species to be exported from the Coral Sea Fishery. The area available for fishing in the Coral Sea Fishery has been significantly reduced since the implementation of the Coral Sea Marine Park in 2018, however the reefs normally accessed by operators harvesting this fish remain open to fishing so this reduction is unlikely to have affected the harvest of this species. Humphead Maori Wrasse has been subject to relatively low levels of fishing pressure in Australian waters, with an average of 7.5 fish being caught each year in the Coral Sea Fishery in recent years. In 2010 Australia’s CITES Scientific Authority determined that the take of up 50 Humphead Maori Wrasse per year by the Coral Sea Fishery was unlikely to be detrimental to the species’ survival in the wild. Advice from relevant expert (Prof. Howard Choat) advised that this take is sustainable. Consistent with the trigger limits in the relevant Harvest Strategy, no more than 10 individuals can be caught without assessment of the catch. This catch assessment must be done in consultation with the CITES Scientific Authority, and has been conditioned in this approval (refer to Section 2). Corals in the Family Acroporidae Corals belonging to the Family Acroporidae are generally abundant and likely to be resilient to fisheries exploitation given their rapid growth, high rates of recruitment and naturally high levels of population turnover. Limited harvest across the broad area of the Coral Sea is expected to have a negligible impact on the survival of these species in the wild. However, if fisheries activity is focussed on specific locations and/ or certain species, then it may be prudent to undertake more detailed and specific stock assessments to better determine the impacts of the fishery and guide sustainable fishery limits. There are also significant climatic threats to coral assemblages which must be considered and monitored to ensure that harvest and management does not risk the survival of corals belonging to the Family Acroporidae in the wild. Conditions on the wildlife trade approval, have been recommended to manage this risk. These conditions include annual catch limits and species-specific reporting to the department. Sea Cucumber Sector The main species harvested are White Teatfish (Holothuria fuscogilva), Black Teatfish (Holothuria whitmaei) and Prickly Redfish (Thelenota ananas). The stock status of White Teatfish is considered uncertain, while Black Teatfish and Prickly Redfish are considered not overfished and not subject to overfishing (Emery et al. 2019). The introduction of the Coral Sea Marine Park in 2018 increased the area closed to fishing, including at least one reef where historically a large proportion of the catch of Black and White teatfish came from. Black Teatfish and White Teatfish The listing of Black Teatfish and White Teatfish under CITES Appendix II took effect on 28 August 2020. The department received a submission for assessment of Black Teatfish and White Teatfish and information to support a proposed non-detriment finding on behalf of
numerous Australian fisheries management agencies, including AFMA, in May 2020 from Dr Ian Knuckey. The department has not received sufficient information to support a non-detriment fishing to be made in relation to the harvesting of White Teatfish from the Coral Sea Fishery. AFMA has acknowledged that the department’s consideration of White Teatfish exports will need to proceed during 2021. A total allowable take of 1 tonne has been approved for export of Black Teatfish from the fishery. Line Sector (previously Line, Trap and Trawl Sector) The Line Sector have operated opportunistically taking a large range of fin fish and shark species. Crustaceans have also been targeted historically. Analysis by the ABARES classify these sectors as not subject to overfishing and uncertain with regard to biomass status. In 2018 the Coral Sea Marine Park was introduced. This significantly reduced the area available to fish and correlated with a 47 per cent reduction in fishing effort in the Line Sector. In 2019 all trap and trawl fishing permits were removed from the fishery. Lobster and Trochus Sector The Tropical Rock Lobster (Panulirus ornatus) has been the main lobster species targeted. The stock of this species is classified as not overfished and not subject to overfishing (Emery et al. 2019). There has been no effort in the Lobster and Trochus Sector for the last three fishing seasons, 2017-18 to 2019-20. Protected species and threatened ecological communities Under the proposed management arrangements, operators are required to take all reasonable steps to avoid the killing or injuring of protected species and the level of interaction under current fishing operations is negligible. The fishery continues to have a low impact on threatened ecological communities and bycatch species. Ecosystem impacts Taking into account existing management measures, fishing methods, and low effort in the fishery, the management regime for the fishery provides for fishing operations to be managed to minimise its impact on the structure, productivity, function and biological diversity of the ecosystem. Conclusion The Department's assessment identified risks in the fishery that often relate to the lack of information available. The Department has recommended conditions that will ensure a precautionary approach is taken to the management of these risks in the fisheries. The Department recommends that the fishery be declared an approved WTO for a period of three years until 7 January 2024 subject to conditions and that the fishery be included on the List of Exempt Native Specimens (LENS) while a WTO approval is in place. The Department also recommends that the management arrangements for the fishery be accredited under Part 13 of the EPBC Act. Unless a specific timeframe is provided, each condition must be addressed within the period of the approved WTO declaration for the fishery.
SECTION 1: ASSESSMENT SUMMARY
Partially Does not
Guidelines assessment Meets Details
meets meet
Management regime 6 of 9 3 of 9 The management regime is effective.
A management strategy is in place, it applies the precautionary principle and in
most cases effectively deals with uncertainty and risk. The Coral Sea Fishery
(the fishery) is managed by the Australian Fisheries Management Authority
(AFMA). The fishery operates under the Fisheries Management Act 1991 and
Fisheries Management Regulations 2019.
Principle 1 (target stocks) 4 of 11 5 of 11 Target stocks are well managed although do not meet all the requirements
2 of 11 N/A under the Guidelines.
Information on fish stocks is limited. However, management is designed to
monitor fishery performance and investigate any changes and manage
uncertainty and risk in a precautionary way. It is considered to be effective.
Principle 2 (bycatch and 10 of 12 Interactions with bycatch and TEPS low due to fishing methods and effort.
TEPS) The nature of the fishery means a low risk to bycatch and likely relatively low risk
2 of 12 N/A to protected species. The management strategy is considered effective. It
includes monitoring and risk mitigation for all species, including bycatch and
EPBC Act listed species.
Principle 2 (ecosystem 1 of 5 4 of 5 Management is precautionary and designed to minimise potential impacts. It is
impacts) informed by ecological risk assessments (ERAs). However these do not include
habitats and communities. The ERAs are scheduled to be reviewed in 2021-
2022 at which time habitats and communities will be assessed and more tailored
data collection and risk mitigation can be considered. There are no listed
ecological communities in the area of the fishery.
5Partially Does not
EPBC requirements Meets Details
meets meet
Part 12 Meets Not applicable.
There are no relevant Marine Bioregional Plans for the Coral Sea Fishery.
Part 13 Meets Impacts on EPBC listed species are low due to the low effort and fishing
methods in some sectors. Two interactions with EPBC Act listed species have
been reported over three fishing seasons (2017 – 20).
Part 13A Meets The fishery is consistent with the Objects of Part 13A. Declaration of the fishery
as a Wildlife Trade Operation for three years, until 6 January 2024 is
recommended, subject to conditions detailed in Section 2 of this report.
Part 16 Meets Management is precautionary and regularly reviewed.
6SECTION 2: SUMMARY OF ISSUES REQUIRING CONDITIONS
Issue Condition
General Management Condition 1:
Export decisions relate to the management arrangements in force at the The Australian Fisheries Management Authority must ensure that
time of any decision(s) made under the Environment Protection and operation of the Coral Sea Fishery is carried out in accordance with
Biodiversity Conservation Act 1999 (EPBC Act). To ensure that the management arrangements defined under the Fisheries Management Act
decision(s) remain valid and export approval continues uninterrupted, the 1991 (CTH) and Fisheries Management Regulations 2019 (CTH).
Department of Agriculture, Water and the Environment (the Department)
needs to be advised of any changes that are made to the management
regime and make an assessment that the new arrangements are Condition 2:
equivalent or better, in terms of ecological sustainability, than those in The Australian Fisheries Management Authority must inform the
place at the time of the original decision(s). This includes operational and Department of Agriculture, Water and the Environment of any intended
legislated amendments that may affect the sustainability of the target material changes to the Coral Sea Fishery’s management arrangements
species or negatively impact on byproduct, bycatch, EPBC Act protected that may affect the assessment against which Environment Protection
species or the ecosystem. and Biodiversity Conservation Act 1999 decisions are made.
Condition 3
The Australian Fisheries Management Authority must inform the
Department of Agriculture, Water and the Environment of any intended
changes to fisheries legislation that may affect the legislative instruments
relevant to this approval.
Annual Reporting Condition 4:
It is important that the Australian Fisheries Management Authority The Australian Fisheries Management Authority must provide reports to
produce and present reports to the Department annually in order for the the Department of Agriculture, Water and the Environment annually as
performance of the fishery and progress in implementing the conditions per Appendix B of the Guidelines for the Ecologically Sustainable
described in this report and other managerial commitments to be Management of Fisheries - 2nd Edition.
monitored and assessed throughout the life of the export approval.
Annual reports should follow Appendix B to the Guidelines for the
Ecologically Sustainable Management of Fisheries - 2nd Edition and
include a description of the fishery, management arrangements in place,
research and monitoring outcomes, recent catch data for all sectors of
the fishery, status of target stock, interactions with EPBC Act protected
species, impacts of the fishery on the ecosystem in which it operates and
7progress in implementing the Department’s conditions described in the
previous assessment for the fishery. Electronic copies of the guidelines
are available from the Department’s website at
http://www.environment.gov.au/resource/guidelines-ecologically-
sustainable-management-fisheries.
Management of species listed in the Convention on the International Condition 5
Trade of Endangered Species (CITES)
The Australian Fisheries Management Authority must limit the take of
The Australian Fisheries Management Authority has sought approval for species listed under the Convention on the International Trade of
the collection and export of certain species listed in CITES Appendix II. Endangered Species (CITES), from the area of the Coral Sea Fishery to
These species are Humphead Maori Wrasse (Cheilinus undulatus), coral no more than:
species belonging to the family Acroporidae and two species of Sea
a) 40 tonnes per year (1 July – 30 June) of any mixture of species
Cucumbers, Black Teatfish (H. whitmaei) and White Teatfish (H.
belonging to the family Acroporidae per year.
fuscogilva).
b) 50 individual Humphead Maori Wrasse (Cheilinus undulatus) per
The CITES Scientific Authority of Australia has assessed the potential
year (1 July to 30 June). Consistent with the trigger limits in the
impact of the proposed collection for the purposes of a non-detriment
relevant Harvest Strategy, no more than 10 individuals can be
finding below.
caught without assessment of the catch. The assessment must be
Proposed management controls, including reporting requirements and done in consultation with the CITES Scientific Authority.
catch limits may be reviewed as additional information becomes
c) 1 tonne per year of Black Teatfish (H. whitmaei)
available, and the Department will work with AFMA to ensure that
management arrangements remain practical and precautionary.
Humphead Maori Wrasse
Australia’s CITES Scientific Authority determined that the take of up 50
Humphead Maori Wrasse per year by the Coral Sea Fishery was unlikely Condition 6:
to be detrimental to the species’ survival in the wild in 2010. Humphead By 1 December 2021, the Australian Fisheries Management Authority
Maori Wrasse has been subject to relatively low levels of take in the must review the science underpinning the catch limit for Humphead Maori
Coral Sea Fishery in recent years. Wrasse (Cheilinus undulatus). This review must include independent,
expert scientific advice.
In 2018 the Coral Sea Marine Park was established and the area
available for fishing in the Coral Sea Fishery has been significantly
reduced. Expert opinion (Prof. Howard Choat, 2020) has suggested that
the total allowable take (total of 50 animals per annum) from the Coral
Sea Fishery is likely to be sustainable. Under the harvest strategy for the
Aquarium Sector in the fishery, if more than 10 individuals are taken then
8an assessment of the catch must be done in consultation with the CITES
Scientific Authority.
Condition 7:
Expert advice received from the IUCN Groupers & Wrasses Specialist As part of the annual reporting requirement referred to in Condition 4, the
Group through the public consultation period for this fishery has been Australian Fisheries Management Authority must report the following to
considered in reviewing the current management conditions for the Department of Agriculture, Water and the Environment, as the CITES
Humphead Maori Wrasse. The advice raises concerns regarding the Scientific Authority of Australia:
extent to which all sources of mortality on the species in Australia are a) the harvested weight and locations of harvest for each coral
considered and managed. It highlights that, while not attributed to fishing, species. This reporting must be undertaken at a species-level.
significant declines (approximately 40 per cent) in populations of this and
other species in the outer areas of Australia’s Great Barrier Reef (within b) the number of individual Humphead Maori Wrasse, their sex,
at least some parts of the Coral Sea Fishery). Concerns were also raised lengths and locations of harvest.
regarding the relative abundance of certain biologically significant c) any assessments, management changes or findings relevant to
individuals, and risks associated with localised depletion and potential the management of CITES-listed species in the Coral Sea
targeting of spawning aggregations (Prof. Howard Choat, 2020; IUCN Fishery.
Groupers and Wrasses Specialist Group, 2020).
These factors all require further investigation and as such Condition 6
review the science underpinning the catch limit for this species. Should
the review conclude that a different limit or trigger point be implemented
for this species, this would trigger a review of the Harvest Strategy for the
Aquarium Sector of this fishery in line with page 13 of the Harvest
Strategy Framework/ Hand collection sub-fishery: Aquarium Sector.
Corals belonging to the Family Acroporidae
Corals belonging to the Family Acroporidae are generally abundant and
likely to be resilient to fisheries exploitation given their rapid growth, high
rates of recruitment and naturally high levels of population turnover.
Limited harvest across the broad area of the Coral Sea is expected to
have a negligible impact on the survival of these species in the wild.
However, if fisheries activity is focussed on specific locations and/ or
certain species, then it may be prudent to undertake more detailed and
specific stock assessments to better determine the impacts of the fishery
and guide sustainable fishery limits.
There are also significant climatic threats to coral assemblages which
must be considered and monitored to ensure that harvest and
9management does not risk the survival of corals belonging to the Family
Acroporidae in the wild.
Condition 8:
The CITES Scientific Authority of Australia has concluded that collection
The Australian Fisheries Management Authority must update the science
in accordance with the management arrangements proposed by the
underpinning the Coral Sea Fishery – Sea Cucumber Sector Harvest
Australian Fisheries Management Authority for the next three years is
Strategy by December 2021, including undertaking a fishery independent
unlikely to be detrimental to the survival of these species in the short term
survey in the area of the fishery, to ensure that the harvest strategy is
and while conditions are met.
supported by up to date scientific information and supports a longer-term
export approval for the fishery.
Sea Cucumbers
While the overall take of White Teatfish and Black teatfish in the Coral
Sea Fishery is small when compared to other Australian fisheries, a study Condition 9:
commissioned by Parks Australia in 2017 found that densities were lower By 1 December 2022, the Australian Fisheries Management Authority
on Coral Sea reefs than on the Great Barrier Reef and Torres Strait for must complete a review of the Coral Sea Fishery Harvest Strategy – Sea
both species (Skewes 2017). The study found that White Teatfish was Cucumber Sector and develop, at a minimum:
found at very low densities throughout the study area (Coral Sea) and
a) species-specific trigger limits and reference points (or proxies) for
this could be attributed (in part) to the previously high fishing effort, with
species listed under CITES;
the species previously making up the largest component of the sea
cucumber take in the CSF (40.6% between 1997–98 and 2008–09). b) ongoing data collection and monitoring plans required to support
White Teatfish has also been the focus of recent illegal, unreported and ongoing fishing of these species.
unregulated fishing by foreign fishing vessels (FFV) in the area, making
up 86% of the catch of 2 FFV apprehended on Saumarez Reef in early
2017.
While Skewes (2017) notes some possible underestimation of the White
Teatfish population due to limitations on survey depth, there is currently
no reliable assessments of the White Teatfish stock in the area of the
CSF to determine whether the current biomass for these species in the
area of the CSF can sustain any level of targeted fishing, nor are there
any reliable indicators of the impact of recent and historical catches on
the successful recruitment of the stock.
Skewes (2017) also noted that the density of Black Teatfish in the Coral
Sea was low. However, a stock assessment of the Coral Sea Fishery
undertaken as part of the Reducing Uncertainty in Stock Status (RUSS)
project (a research programme carried out to try and reduce the number
of Commonwealth fish stocks that classified as uncertain) found that the
median biomass of Black Teatfish was greater than 99% of 1997 biomass
10estimates. This led to the stock being classified as not overfished and not
subject to overfishing (Woodhams et al., 2015). In the 2017 survey, the
population biomass estimate of 340 t liveweight (±155 t 90% CI) was
similar to the one for the same reefs by Woodhams, Chambers &
Penrose (2015). The biomass status for black teatfish is therefore
classified as not overfished.
ABARES (2020) also outlines that there is insufficient information
available to confidently classify the status of the White Teatfish stock in
the area of the CSF. While both stocks are classified as not subject to
overfishing, this conclusion was based on a lack of fishing for the species
in seasons relevant to the report.
Given the above, the Department considers that the current management
implemented in the CSF should be reviewed. The collection and analysis
of fishery dependent and independent data from the CSF, together with
periodic surveys, should provide the basis for informed management
decisions to promote sustainable utilisation of the resource. A data
collection and monitoring plan for this fishery should consider the
standard information needs for non-detriment findings such as:
1. species biology;
2. species life history characteristics;
3. species range – historic and current;
4. population structure, status and trends (nationally and in the
harvest area);
5. threats;
6. species specific (or in some instances genus specific) levels of
harvest/ mortality from the fishery (historic and current); and
7. estimates of species specific (or in some instances genus
specific1) levels of harvest/mortality from all sources combined.
In line with the expectations for the management of the trade in CITES-
listed species, species from a fishery should be managed at the species
level where possible (i.e. TACs, catch reporting, management
performances, etc) and based on scientific analysis. While the current
Harvest Strategy includes triggers for further management action, the
current triggers are at or above the combined TAC for the two species
being considered (1T and 4T).
11The CSF Harvest Strategy outlines that
“Given the potential for depletion, particularly with regard to black teatfish,
it is important to set conservative TACs and to carefully monitor spatial
catch patterns. The existing TACs for black and white teatfish were based
on the results of a research study undertaken on the adjacent Great
Barrier Reef and based on extrapolation are somewhat biologically
meaningful (Benzie and Uthicke, 2003). As weight and size of sea
cucumber varies depending upon the degree of hydration, catch figures
can be misleading. As part of the monitoring program under the harvest
strategy, periodic (suggest a minimum of 1 per 3 years) fishery-
independent surveys on indicator/key reefs are recommended (with
indicator/key reefs to be determined within the first 12 months).”
The Department notes that there have been subsequent population
surveys in the area of the fishery which appear to not have been taken
into account in the setting of the current TACs for the two species and the
Department further concurs with the CSF Harvest Strategy that as part of
a monitoring program under the harvest strategy, periodic (suggest a
minimum of 1 per 3 years) fishery-independent surveys on indicator/key
reefs are recommended, therefore conditions have been developed to
address this need. The objectives of the Commonwealth Harvest
Strategy Policy (HSP) include to:
• maintain key commercial fish stocks, on average, at the required
target biomass to produce maximum economic yield from the
fishery
• maintain all commercial fish stocks, including byproduct, above a
biomass limit where the risk to the stock is regarded as
unacceptable (BLIM), at least 90 per cent of the time
• ensure fishing is conducted in a manner that does not lead to
overfishing— where overfishing of a stock is identified, action will
be taken immediately to cease overfishing
Where information to support selection of a stock-specific limit reference
point is not available, a proxy of 0.2 times unfished biomass should be
used. In all cases, the species’ role in the proper functioning of the
12marine ecosystem should be considered and the limit reference point
must be no less than 0.2 times unfished biomass.
Reference points are generally based on indicators of either the total or
spawning stock size (biomass) or the amount of harvest (fishing
mortality). AFMA has a good understanding of the fishing mortality and
the survey carried out as part of Condition 8 will help estimate biomass.
In revising the Harvest Strategy for the Sea Cucumber sector of this
fishery.
Acknowledging the challenges with deriving reference points for sea
cucumber species because of the highly variable nature of their stocks,
the use of a proxy reference points may be required.
For example, in the case of the Protected Zone Joint Authority’s Torres
Strait Beche-de-Mer fishery, a conservative value of 0.4 times unfished
biomass is used for the limit reference point, nonetheless, where
available, survey data are used to select a lower limit reference level (the
level below which stock density is considered unacceptably low and the
fishery is closed).
The same principles could help guide the revised HS for this sector of the
Coral Sea Fishery.
13Assessment history:
Assessment history
• 1st assessment finalised 2004 –.3 conditions; 10 recommendations.
• 2nd assessment finalised 2007 – 5 conditions.
• 3rd assessment finalised 2010 – 9 conditions; 2 recommendations.
• 4th assessment finalised 2013 – 4 conditions; 3 recommendations.
• 5th assessment finalised 2017 – 8 conditions
Fishery reporting
• Annual reports in accordance with the Guidelines for the Ecologically Sustainable Management
of Fisheries (2nd edition) were received by the Department in 2018 and 2019.
• Fishery status has also been assessed and reported by the Australian Government Bureau of
Agricultural and Resource Economics and Sciences:
o Fishery Status Reports - Coral Sea Fishery
Key links
Fishery information page on agency website: http://www.afma.gov.au/fisheries/coral-sea-fishery/
Management plan: There is no formal management plan under the Fisheries Management Act 1991.
Management arrangements are summarised in the Coral Sea Fishery Management Arrangements
Booklet 2020: http://www.afma.gov.au/fisheries-services/fisheries-management-plans/
Enforcing legislation
• Commonwealth Fisheries Management Act 1991
• Commonwealth Fisheries Management Regulations 2019
Harvest Strategies
• Harvest Strategy Framework Aquarium Sector of the Coral Sea Fishery
• Coral Sea Fishery – Lobster and Trochus Sector Harvest Strategy (PDF)
• Coral Sea Fishery – Sea Cucumber Sector Harvest Strategy (PDF)
• Coral Sea Fishery – Line Trawl and Trap Sector Harvest Strategy (PDF)
• Coral Sea Fishery Bycatch and Discard WorkPlan
Ecological Risk Assessments
• Aquarium Sector
• Auto Longline Sector
• Demersal Longline Sector
• Lobster and Trochus Sector
• Other Line Sector
• Sea Cucumber Sector
14SECTION 3: DETAILED ANALYSIS AGAINST THE GUIDELINES
Guidelines criteria
Comment
THE MANAGEMENT REGIME
The management regime does not have to be a formal statutory fishery management plan as such and may include non-statutory management
arrangements or management policies and programs. The regime should:
Be documented, publicly available and Meets
transparent. The Coral Sea Fishery (the fishery) management arrangements are well documented and available on
the AFMA website. These arrangements are specified in the Coral Sea Fishery Management
Arrangements Booklet and Coral Sea Fishery harvest strategies, as well as conditions applied to fishing
permits.
Management is consultative and transparent, although records of meetings are not published on the
AFMA website.
Be developed through a consultative Meets
process providing opportunity to all Management arrangements are developed in consultation with fishery stakeholders. This typically
interested and affected parties, including occurs through annual stakeholder meetings. However, since the announcement Coral Sea
the general public. Commonwealth Marine Reserve and fishing methods and areas permitted in the fishery from mid 2019
there have been no further stakeholder meetings for the fishery.
AFMA holds two to three environmental forums annually where stakeholders can engage on any AFMA
fisheries issues. There have been no environmental forums for the fishery.
Ensure that a range of expertise and Meets
community interests are involved in The Coral Sea Fishery Stakeholder Group provides advice to AFMA on management arrangements in
individual fishery management committees the fishery as required, and it may include fishery scientists, fishing industry members, environmental
and during the stock assessment process. non-government organisation, representatives of the recreational fishing sector, and state and
Commonwealth government representatives.
Be strategic, containing objectives and Meets
performance criteria by which the Harvest strategies are in place for all sectors of the fishery and detailed objectives and performance
effectiveness of the management criteria by which management performance is measured. These harvest strategies are regularly
arrangements are measured. reviewed and published on the AFMA website.
15Be capable of controlling the level of Meets
harvest in the fishery using input and/or The fishery uses a mixture of input and output controls, including temporal and spatial management
output controls. tools, size limits, total allowable catch (TACs), catch trigger limits, gear restrictions, and move on
provisions.
It also has a range of precautionary management triggers built into the harvest strategies for each of the
fishery sectors.
Contain the means of enforcing critical Partially meets
aspects of the management arrangements.
AFMA uses a risk-based approach to inform its monitoring and enforcement program. All vessels are
required to operate approved vessel monitoring systems (VMS) at all times.
The Line Sector has a minimum coverage level of 10 per cent of fishing effort to meet the requirements
of the Threat Abatement Plan for the incidental catch (or bycatch) of seabirds during oceanic longline
fishing operations (2018) (Threat Abatement Plan - Seabirds). There is no prescribed minimum
observer coverage for the Sea Cucumber, Lobster and Trochus and Aquarium sectors.
All fishers are required to complete logbook catch records, and all catch, except from the aquarium
sector, must be unloaded to a licensed fish receiver. The fish receiver system allows logbook catch
records to be verified against catch disposal records.
Under a 2011 agreement, the Queensland Department of Agriculture and Fisheries (QDAF) provides
logbook services for the Aquarium Sector of the Coral Sea Fishery. Operators submit completed daily
logbooks to QDAF who then provide quarterly reports to AFMA as well as scanned copies of the
logbooks.
Provide for the periodic review of the Partially meets
performance of the fishery management Harvest strategies are in place for all fishery sectors but for some sectors they are outdated. Harvest
arrangements and the management strategies include a range of precautionary triggers designed to monitor and manage the performance
strategies, objectives and criteria. of the fishery. Performance under the strategies is reviewed annually.
16Be capable of assessing, monitoring and Partially meets
avoiding, remedying or mitigating any Ecological risk assessments (ERAs) have been completed for all sectors but were undertaken in 2007
adverse impacts on the wider marine and are yet to be reviewed. Permit conditions and harvest strategy triggers complement AFMA’s
ecosystem in which the target species lives strategy to mitigate risks to species, habitats and communities are managed in a precautionary way.
and the fishery operates.
A subsequent semi-quantitative assessment was undertaken in 2009 (for Chondrichthyan and listed
protected species). This confidential assessment identified a number of species as potentially being at
high risk in the line sector.
Permit conditions and a Bycatch and Discarding Workplan seek to manage some of these risks, but not
all. Compulsory logbook reporting includes provision for reporting bycatch and interactions with
protected species. The Line Sector is also subject to the requirements of the Threat Abatement Plan -
Seabirds which includes handline practices as well as a minimum of 10 per cent observer coverage.
This allows AFMA to detect and respond to emerging issues and potential impacts.
ERAs were expected to be reviewed in 2018–2019, however this has been pushed back to 2021-2022.
Requires compliance with relevant threat Meets
abatement plans, recovery plans, the The fishery complies with all relevant threat abatement plans, recovery plans, the National Policy on
National Policy on Fisheries Bycatch, and Fisheries Bycatch, as well as bycatch action strategies developed under the policy.
bycatch action strategies developed under
The fishery’s Bycatch and Discarding Workplan, was to be reviewed in 2012, and a new work plan
the policy.
developed and implemented within six months. Given the relatively low effort levels across the fishery,
the Bycatch and Discarding Workplan will be updated following the updates to the ERAs scheduled to
be undertaken in 2021-22.
AFMA continues to monitor triggers under the harvest strategies.
17PRINCIPLE 1 - A fishery must be conducted in a manner that does not lead to over-fishing, or for those stocks that are over-fished, the fishery must
be conducted such that there is a high degree of probability the stock(s) will recover.
Objective 1 - The fishery shall be conducted at catch levels that maintain ecologically viable stock levels at an agreed point or range, with acceptable
levels of probability.
Information requirements
1.1.1 There is a reliable information Partially meets
collection system in place appropriate to Fishers are required to report all fishing activity in approved daily fishing logbooks. All retained catch
the scale of the fishery. The level of data (except that taken by the Aquarium Sector) must then be unloaded to a licensed fish receiver, and
collection should be based upon an verified weights reported by the fish receiver to AFMA.
appropriate mix of fishery independent and
All vessels are required to operate approved VMS at all times, which provides information on vessel
dependent research and monitoring.
location. Onboard observers are also required to be carried when requested by AFMA, and the Line
Sector also has a minimum coverage level of 10 per cent of fishing effort.
Assessment
1.1.2 There is a robust assessment of the Partially meets
dynamics and status of the species/fishery
Information on species in the fishery is relatively limited. Uncertainty and risk are managed in a
and periodic review of the process and the
precautionary way through harvest strategies. These harvest strategies are designed to monitor activity
data collected. Assessment should include
and respond to changes in catch (quantity, composition and catch rates) and effort (including spatial
a process to identify any reduction in
distribution) in a precautionary way. Fishery performance under the harvest strategies is periodically
biological diversity and /or reproductive
reviewed and strategies are adjusted as necessary in consultation with relevant experts and other
capacity. Review should take place at
stakeholders.
regular intervals but at least every three
years.
1.1.3 The distribution and spatial structure Partially meets
of the stock(s) has been established and Information on stocks is relatively limited.
factored into management responses.
Harvest strategies for the fishery sectors are designed to monitor activity and manage the fishery in a
precautionary way. Fishery performance under the harvest strategies is periodically reviewed and
strategies are adjusted as necessary in consultation with relevant experts and other stakeholders
(Trigger Reports available on AFMA’s website on the Coral Sea Fishery page).
181.1.4 There are reliable estimates of all Meets
removals, including commercial (landings Daily fishing logbooks and catch disposal records provide reliable records of all commercial catch.
and discards), recreational and indigenous,
A large number of species harvested in the fishery are also taken in adjacent or other regional fisheries,
from the fished stock. These estimates
primarily managed by the Queensland Government. There is also considered to be a possibility of
have been factored into stock assessments
shared stocks of sea cucumber, trochus, prawn and lobster species with Torres Strait fisheries.
and target species catch levels.
There is no indigenous fishing and very limited recreational fishing in the area given its distance from
the coast.
1.1.5 There is a sound estimate of the Partially meets
potential productivity of the fished stock/s Information on stocks is relatively limited.
and the proportion that could be harvested.
Harvest strategies for the fishery sectors are designed to monitor activity and manage the fishery in a
precautionary way. Fishery performance under the harvest strategies is periodically reviewed and
strategies are adjusted as necessary in consultation with relevant experts and other stakeholders
(Trigger Reports available on AFMA’s website on the Coral Sea Fishery page).
Management responses
1.1.6 There are reference points (target Partially meets
and/or limit), that trigger management Harvest strategies are in place for all sectors of the fishery and include precautionary triggers and limits
actions including a biological bottom line but not all target species have reference points identified. Fishery performance under the harvest
and/or a catch or effort upper limit beyond strategies is periodically reviewed and the review published in Trigger Reports available on AFMA’s
which the stock should not be taken. website on the Coral Sea Fishery page.
Some harvest strategies have not been updated since their inception in 2007 or since the introduction of
the Coral Sea Marine Park, and the removal of some fishing methods. The Department recommends
that the harvest strategy for the Line Sector be updated to reflect the removal of trap and trawl fishing
sectors from the fishery and update triggers relating to species only caught in the Line Sector and
include the sectors requirement to comply with the Threat Abatement Plan - Seabirds.
Further the Department has conditioned the approval on the revision of the harvest strategy for the Sea
Cucumber sector.
191.1.7 There are management strategies in Meets
place capable of controlling the level of
The fishery uses a mixture of input and output controls, including temporal and spatial management
take.
tools, size limits, total allowable catch (TACs), catch trigger limits, gear restrictions, and move on
provisions, and has a range of precautionary management triggers built into the harvest strategies for
each of the fishery sectors.
Fishing is also limited to some extent by the vast area, small number of licenses, significant areas
closed to fishing, inclement weather and distance from the coast.
1.1.8 Fishing is conducted in a manner that
Meets
does not threaten stocks of byproduct
species. Harvest strategies are in place for all sectors of the fishery and include precautionary triggers limits,
relevant to all species. Fishery performance under the harvest strategies is periodically reviewed and
published in Trigger Reports (available on AFMA’s website on the Coral Sea Fishery page).
Ecological risk assessments have been completed for all sectors and did not find any byproduct species
to be at high risk.
Ecological risk assessments were last undertaken in 2007 and were expected to have been reviewed in
2018–2019. Given the relatively low and declining effort, restricted area of fishing and removal of the
trawl and trap sector from the fishery, the ERAs have been re-scheduled to be undertaken in 2021-2022
1.1.9 The management response, Meets
considering uncertainties in the The fishery is small in scale and relatively data poor. However, management is precautionary and
assessment and precautionary actively seeks to engage uncertainty to manage risk. The fishery has a high chance of maintaining
management actions, has a high chance of ecologically viable stock levels due to management arrangements in place.
achieving the objective.
20If overfished, go to Objective 2:
If not overfished, go to PRINCIPLE 2:
Objective 2 - Where the fished stock(s) are below a defined reference point, the fishery will be managed to promote recovery to ecologically viable
stock levels within nominated timeframes.
Management responses
1.2.1 A precautionary recovery strategy is Not applicable
in place specifying management actions, or No stocks are classified overfished or are subject to overfishing (Emery et al. 2019).
staged management responses, which are
linked to reference points. The recovery
strategy should apply until the stock
recovers, and should aim for recovery
within a specific time period appropriate to
the biology of the stock.
1.2.2 If the stock is estimated as being at Not applicable
or below the biological and / or effort No stocks are classified overfished or are subject to overfishing (Emery et al. 2019).
bottom line, management responses such
as a zero targeted catch, temporary fishery
closure or a ‘whole of fishery’ effort or
quota reduction are implemented.
PRINCIPLE 2 - Fishing operations should be managed to minimise their impact on the structure, productivity, function and biological diversity of the
ecosystem.
Objective 1 - The fishery is conducted in a manner that does not threaten bycatch species.
Information requirements
2.1.1 Reliable information, appropriate to Meets
the scale of the fishery, is collected on the Daily fishing logbooks provide reliable records of all commercial catch, including any bycatch. Onboard
composition and abundance of bycatch. observers, when carried, also provide detailed information on bycatch including species composition
and abundance.
21Assessment
2.1.2 There is a risk analysis of the bycatch Meets – Risk analysis of bycatch vulnerability has been conducted.
with respect to its vulnerability to fishing. Ecological risk assessments have been completed for all fishery sectors and did not find any bycatch
species to be at high risk,
Ecological risk assessments were carried out in 2007 and were expected to have been reviewed in
2018–2019, however this review is now scheduled to occur in 2021-22.
Permit conditions and a Bycatch and Discarding Workplan are aimed at managing some of these risks,
but not all. Compulsory logbook reporting includes provision for reporting bycatch and interactions with
protected species. This coupled with observer coverage in the line sector that recorded risks allows
AFMA to detect and respond to emerging issues and potential impacts. Permit conditions and harvest
strategy triggers also contribute to managing the risks to all species, habitats and communities.
22Management responses
2.1.3 Measures are in place to avoid Meets
capture and mortality of bycatch species Harvest strategies are in place for all sectors of the fishery and include precautionary triggers and limits,
unless it is determined that the level of relevant to all species. These triggers and limits are regularly reviewed and results are published on
catch is sustainable (except in relation to AFMA’s website.
endangered, threatened or protected
The Aquarium, Sea Cucumber and Lobster and Trochus and Line Sector ERA’s does not identify any
species). Steps must be taken to develop
indicator groups of bycatch species and concludes the effect of fishing on bycatch species is negligible
suitable technology if none is available.
due to the fishing method (hand collection.
A semi qualitative risk analysis for the fishery was undertaken in 2009 (focussing on Chondrichthyan
and listed protected species) and identified three main groups more at risk in the Line sector:
- Turtles;
- Bathyl Sharks; and
- Reef Sharks.
Trip limits best practice protocols for handling of sharks and other species of concern, adhering to the
Threat Abatement Plan - Seabirds and move on provisions are measures used to reduce interactions
with these three groups more at risk in the Line sector.
The Coral Sea Bycatch and Discarding Workplan spans 2010–2012 and was to be reviewed in 2012 to
assess its effectiveness and the risk profile of the fishery. It states that a new work plan must be
developed and implemented within six months (i.e. by 2013). AFMA expected to deliver an updated
fishery-wide Bycatch and Discarding Workplan during 2018–2019. However, this did not occur and
AFMA has advised that this will not occur until 2021-2022. In the meantime, AFMA is continuing to
monitor triggers under harvest strategies, and effort has been reducing in the fishery through the
introduction of the Coral Sea Marine Park in 2018 and the removal of trap and trawl methods in mid-
2019.
Onboard observer coverage for the Line sector have met the 10 per cent requirement for the last three
fishing seasons.
2.1.4 An indicator group of bycatch species Meets
is monitored. While there is no specific indicator group of bycatch species monitored in the fishery, the harvest
strategies monitor catches of all species within the fishery.
232.1.5 There are decision rules that trigger Meets
additional management measures when While there is no indicator group of bycatch species in the fishery, harvest strategies contain triggers
there are significant perturbations in the that initiate further analysis and assessment when significant changes in catch, (including proportion of
indicator species numbers. total catch) or effort are detected.
2.1.6 The management response, Meets
considering uncertainties in the This fishery is unlikely to threaten the sustainability of bycatch species due to the fishing method in the
assessment and precautionary Aquarium, Sea Cucumber and Lobster and Trochus sectors.
management actions, has a high chance of
The Line sector has a minimum coverage level of 10 per cent of fishing effort to meet the requirements
achieving the objective.
of the Threat Abatement Plan - Seabirds. Other bycatch mitigation measures in place for the Line
Sector include best practice protocols for handling of sharks and other species of concern.
Objective 2 - The fishery is conducted in a manner that avoids mortality of, or injuries to, endangered, threatened or protected species and avoids or
minimises impacts on threatened ecological communities.
Information requirements
2.2.1 Reliable information is collected on Meets
the interaction with endangered, All fishing activity must be reported using AFMA approved logbooks. These logbooks include provision
threatened or protected species and to report protected species interactions. The line sector requires 10 percent observer coverage to meet
threatened ecological communities. the requirements of the Threat Abatement Plan (Seabirds). In the 2017-2018 fishing season there was
one reported interaction with protected species by observers.
The risk posed by the fishery has been assessed in ecological risk assessments and was found to have
a low risk to protected species and ecological communities.
The Line Sector requires 10 percent observer coverage to meet the requirements of the Threat
Abatement Plan (Seabirds).
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